1 Introduction
This chapter is a joint attempt of researchers within the field of Sami education to provide insights on different aspects of the Sami language teaching in primary and secondary education, as well as the Sami language teachersâ training, in the four countries where the Sami people live, namely, Norway, Sweden, Finland, and Russia. The language situations in these four countries differ from each other, in terms of the different legal status of the Sami languages, the number of Sami language speakers, and the status of the Sami language in the school curricula. This chapter aims at (a) identifying and describing
This chapter is organised as follows: Firstly, we present practices of Sami language learning at schools in and outside of Sápmi. Secondly, we provide an overview of how the universities in each of the countries promote Sami languages teaching. At the end of this chapter, we summarise the teaching contexts of the Sami languages, identifying similarities, differences, successes, and challenges. Our approach is primarily descriptive and provides an overview, which is of interest for both researchers and policymakers. In addition, outlining the country-specific Sami language education context provides an opportunity to identify some of the main contemporary trends, and provides lessons to be learnt by and from these four countries.
From the mid-19th century to the mid-20th century, the statesâ purpose was to assimilate and colonise the Sami people through different policies. Colonisation is often understood as the takeover of lands, but the term also refers to the takeover of the minds of the colonised peoples, usually through Christianity and the school system (Kuokkanen, 2000). The school system was one instrument of colonialisation, segregation, assimilation, and dispossession in the Nordic countries and Russia â both through regular schools and residential schools. In Norway, a separate written assimilation policy was introduced. Sweden implemented a policy of segregation, as Sami-speaking reindeer herders attended the nomad school, while the other Sami attended municipality schools. In Finland, the Finnish language and culture were emphasised without any special attention to minorities. In Russia, due to the totalitarianism caused by Stalinism, many Sami-speaking teachers were sent to camps from which they never returned to their villages and families (Kortekangas et al., 2019). As a result of colonisation, the Sami languages have gone through dramatic changes. Sami dialects disappeared, and some Sami languages were pressured to near extinction.
The Nordic countries apply different policies and strategies to support the Sami language teaching at school, and to maintain the Sami culture and language revitalisation. Five out of ten Sami languages are taught in schools in the Nordic countries now, while in Russia, one language, Kildin Sami, is taught to a limited extent (Aikio-Puoskari, 2018). The Sami people across these countries have gained different legal support. In Norway, the Sami are
Nowadays, the Nordic countries support the development of the Sami language through various policy improvements. For example, in Norway, the Sami curriculum was introduced in 1997. In Sweden, in addition to the National Curriculum, a Sami National Curriculum for Sami schools was established in 2010 (BelanÄiÄ, 2020). Sami schools, Sami school programmes, and Sami language courses were established. Besides this, Sami colleges and teacher education programmes, in and outside of Sápmi, the traditional land of the Sami people, were introduced to improve Sami language learning. The establishment of these Sami policies and institutes were steps on the path of an attempted reconciliation with the Sami peoples (Gjerpe, 2017).
This chapterâs information is based on the authorsâ respective research work and experiences (cf. BelanÄiÄ, 2020; Helander et al., 2023; Kroik, 2018; Olsen, 2020; Zmyvalova, 2015, 2022). Important data consist of documents, educational programmes, curricula, and language policy materials. In the following, we clarify some of the terminologies used in this chapter. The whole area of the four countries where the Sami population have traditionally lived is called Sápmi. When we discuss educational and language policies in the respective countries, we use other terminologies. In Norway, according to the Law 1987-06-12-56 (LOV-1987-06-12-56), Sami and Norwegian are equal languages in so-called administrative areas for the Sami Language. The Sami administrative area in Sweden means that municipalities are obliged to provide, education, elderly care, and general information in Sami (SFS 2009: 724). In Finland, this area is called Sami homeland, where the Sami languages have their official status (Sámi language Act 1.6.1999/731). In Russia, there is no official name for the territory.
2 Norway, Sweden, Finland, and Russia
2.1 Norway
Approximately 50â65,000 Sami people live in Norway, and Lule Sami, South Sami, and North Sami are official languages in Norway (IWGIA, 2021). As Norway has changed its policy from assimilation to recognition of the Sami, there is now a greater need for more Sami language competence. As with
2.1.1 Main Tendencies in Norway
A historical overview of the situation in Sami education in Norway has been explored by many researchers already (Hirvonen & Keskitalo, 2004; Olsen, 2020). From the time of the Christian missions in the early 18th century, the school was a key arena for state policies to be put into practice. This was supported by Norwegianisation, the assimilation policy that led from the middle of the 19th century to the middle of the 20th century. The goal of Norwegianisation was to assimilate the minorities living within the state borders. The Sami were on the receiving end, and experienced this multilateral political ideology and practice, particularly in schools. For Sami communities, Norwegianisation had a devastating impact. Some Sami dialects disappeared, while other Sami languages were pressured until (near) extinction. The practices in schools and amongst teachers varied, from actual banning to different kinds of sanctions directed towards Sami language use in school. These impacts have changed the Sami community.
Contemporary policy on Sami education has resulted from assimilation and colonisation. From the mid-1980s, however, Norway has changed its policy towards the Sami, as demonstrated in the Sami Act of 1987, the Sami Article in the Constitution of 1988, the opening of the Sami Parliament in 1989, and the ratification of ILO 169. In 1997, the first national Sami curriculum was launched. Despite some challenging aspects, this was an important milestone when it came to Sami education (Gjerpe, 2017).
The curricula across all educational stages, from early childhood to higher education, increasingly align with the principles of a system that emphasizes the importance of recognizing Sami rights (Olsen, 2020). The education system, from kindergarten through teacher education programs, is legally required to deliver instruction in Sami languages for Sami students and to provide education about Sami story, society, languages, and rights for all students in Norway. The changes in the Sami language policy from 1980s onwards has had a positive effect on the Sami culture and language revitalisation, as the role of the schools changed from one of assimilation to one of (re)vitalisation.
Following, we will demonstrate an example of South Sami language school teaching, which serves as an interesting and illustrative case. In Norway, South Sami is taught as a first language or as a second language. Children who speak Sami at home can follow the curriculum for Sami as a first language (Sami 1),
There are three main schools that provide most of the South Sami language teaching. They are located in SnÃ¥sa, Hattfjelldal and Røros. The first two are former boarding schools. All of them are within the Norwegian administrative areas for the Sami Language. à arjelsaemien vierhtiesÃ¥afoe in Aarborte is now a centre for remote Sami teaching. à arjelsaemiej skuvle in SnÃ¥sa has school children that attend school in situ as well as distance students. Saemien goevtese in Røros arranges the South Sami teaching for Sami children both physically and remotely. All three schools host various meetings for schoolchildren where they can meet peers and learn the Sami language intensively. In 2020, p. 101 children in total received education in South Sami. 35 children received South Sami as a first language (school subject called âSami 1â), while 66 children received South Sami as a second language (Sami 2), respectively 16 students received Sami 3 (Sámi allaskuvla, 2021).
2.1.2 Sami Language Teacher Training
The teacher education program faces many dilemmas and challenges, as Sami language teachers are too few. In the areas where North Sami has maintained its role as the majority language, in inner Finnmark, there is a gap between the demand for language teachers in schools and teacher education, and the potential teacher candidates. In the areas hardest struck by assimilation, in the Lule Sami and South Sami language areas, as well as in the Sea Sami and Marka Sami areas, the number of language users has decreased. Therefore, fewer potential teachers are available in these areas.
At present, both local schools and kindergartens, as well as teacher education institutions, struggle to recruit teachers. Sami teacher education programmes are introduced in many universities and university colleges of Norway. These programs are to provide education to ensure that student teachers receive relevant knowledge about the Sami.
The three institutions in the northernmost part of Norway, Nord University, UiT The Arctic University of Norway, and the Sámi University of Applied Sciences, have an additional mandate and obligation regarding the three official Sami languages. Nord University provides teacher education in both Lule and South Sami, as well as an early childhood education teacher education program with a Sami profile. UiT The Arctic University of Norway also has a Sami teacher education in North Sami for upper secondary education. Both Nord University and UiT The Arctic University of Norway have ambitions to include
The teacher training program for South Sami teachers at Nord University deserves special attention, since the program as such, and its dynamics, illustrate both good practices and challenges regarding language revitalisation of the Sami languages.
In 2018, Nord University established a programme for training teachers in South Sami. In the first year, only one student was enrolled in the programme. In the second year, four students were enrolled in the teacher programme, and in addition, a few more students were enrolled in language courses that ran in parallel with the programme.
Now, the South Sami primary teacher education programme is a five-year masterâs degree, taught mainly in Norwegian. However, the language of instruction for the South Sami language course is South Sami. David Kroik, who teaches South Sami at Nord University, observed university students facing challenges with South Sami being the language of instruction. At the same time, studentsâ language knowledge in Sami differs, which makes teaching also challenging.
Both educators and students raise the question as to whether the programme is a Sami teacher education programme, or a Norwegian teacher education programme providing South Sami language courses for teachers. Several attempts have been made to urge the university to implement Sami perspectives, philosophy, and language throughout all parts of teacher education, without any success.
Not only does the overall structure of the teacher training programme face challenges, but the South Sami subject does too. Although the access to literature in South Sami has expanded dramatically in recent years (Kroik, 2018), literature, especially in fields such as phonology, sociolinguistics, and language teaching and learning, is limited. Only a few scholars are proficient in these academic fields as well as in the South Sami language. To increase access to literature in South Sami, university teachers create assignments resulting in products that can be used among educators, teachers, parents, and South Sami language revitalisation stakeholders. For example, students can transcribe recordings of now-passed native South Sami speakers, or students can make audio recordings of childrenâs books.
2.2 Sweden
The Sami people live in the Swedish part of Sápmi, stretching from northern Lapland to Dalarna in the south. In Sweden, there are no official statistics for the number of Sami people. However, one assumes that between 20,000 to
Due to the Education Act (SFS 2010: 800), the Sami people have the right to receive equal education, regardless of their place of residence in Sweden. Additionally, the Sami people have the right to use their Sami language with governmental authorities (SFS 2009: 724) if they live in one out of 25 current municipalities in the Sami administrative area.2 These municipalities are responsible for protecting and promoting the North, Lule, South, Ume, and Pite Sami languages and culture, and for highlighting the development of the Sami languages (SFS 2009: 724). Sami people living outside the administrative municipalities enjoy the right to use Sami with authorities if authorities have Sami-speaking personnel. Also, if the municipality has qualified Sami speakers, Sami people have the right to receive elderly care in Sami.
2.2.1 Sami Education In-Between
Sami children living in the Swedish area of Sápmi can attend one out of six Sami schools, starting from grades one to six. Sami children who cannot attend a Sami school due to distance can get Sami teaching in several subjects (for example, Sami Language, Sami Handicrafts, Home and Consumer Studies, and Social Studies) in primary and secondary education, through integrated Sami teaching. Integrated Sami teaching can be taught both in the classroom and remotely. Integrated Sami instruction can be delivered remotely, but only when a municipality is unable to hire a qualified teacher in Sami or another subject. These courses are included as part of the standard school schedule for compulsory education (Belancic, Wuolab & Lindgren, 2022).
In addition to the Sami integrated teaching, Sami children anywhere in Sweden can choose to study the Sami language. Even if a child does not speak Sami at home, the child has the right to receive teaching in Sami. There is no requirement for a child to have a basic level of the language to get access to Sami teaching. The municipality is obliged to arrange the Sami teaching, even if there is only one child applying to study Sami.
Instruction in the mother tongue can be provided under the Sami syllabus (as a first or second language), as part of Modern Languages, through the Studentâs Choice or Schoolâs Choice programs, or outside regular school hours. However, the curriculum does not specify the number of teaching hours for this subject, leaving it up to each municipality to determine the allocation of time. For example, in the municipality of Lycksele, students from kindergarten to grade six receive Sami teaching twice a week for 60 minutes (Lycksele kommun, 2017).3 Also, if a municipality is not able to recruit a qualified teacher in a Sami integrated school, the subject can be taught remotely, either as part of regular
In 2020, 729 students had received access to learn Sami as a mother-tongue (Skolverket, 2021). However, only 458 received teaching in Sami, either through integrated Sami teaching or remotely. These numbers indicate that almost 40 percent of the eligible students did not receive Sami language teaching. This can be explained by the lack of qualified teachers and teaching recourses (BelanÄiÄ, 2020).
2.2.2 Teacher Training in Sami
Since 2016, Umeå University has had the mandate to provide Sami teacher education, but only free-standing remote courses were offered, with the opportunity to add on a supplementary pedagogical education (kompletterande pedagogisk utbildning, KPU). These supplementary courses are taught remotely, to reach a greater audience across the country. Since 2020, Umeå University has had the task of expanding and promoting the teaching in Sami for pre-school, compulsory school, upper secondary school, and higher education. Activities include, but are not limited to, language courses for beginners, as well as further education for practicing mother tongue teachers, scientific courses of literature, Nordic co-operation, research, and academic environments focusing on Sami (Regeringen, 2020). Additionally, Umeå University and Uppsala University provide Sami language beginner courses to everyone interested in learning Sami.
2.3 Finland
About 11 000 Sami live in Finland. Many Sami have lost their mother tongue under the pressure of the Finnish language. The Sami have a self-governance of their language and culture in the Sami homeland comprising Enontekiö, Inari, and Utsjoki, as well as the northern part of Sodankylä (The Constitution of Finland, 17.7.1995/974). In the Sami homeland, the Sami have the right to use their Sami language with public authorities, and outside the homeland with governmental authorities (Sámi language Act 1.6.1999/731). The Sami-speaking children have the right to Sami language early childhood education throughout the country (Act on Early Childhood Education and Care 540/2018). The Sami-speaking pupils have the right to receive teaching in Sami in the municipalities of the Sami homeland. However, 75 percent of Sami children in primary and secondary education live outside of the homeland, in 230 municipalities (Keva, 2020). None of these municipalities is required to provide Sami language education, but have an option to provide extra-curricular teaching, two hours weekly, according to the Finnish Ministry of Education (Ministry of Education Decree, 2009/1777).
2.3.1 Sami Teaching in and Outside of the Sami Homeland
Sami language teaching began in the late 1970s, in the municipalities of the Sami homeland. The teaching of Sami-speaking pupils in pre-school, primary and upper secondary education should be provided mainly in Sami in the municipalities of the Sami homeland. Since 1999, this has been secured by a special provision in the Act on the Financing of Educational and Cultural Provision (1705/2009, p. 45 § 1 mom). Therefore, it is possible to provide Sami language teaching in all subjects in the curriculum. However, the possibility is sometimes limited, since the subject teachers with Sami language competency are not widely available in all school subjects. In practice, 51 percent of Sami teaching is considered as enough to cover the education act demands. However, a special financial provision encourages the increase and development of teaching. The regulation can therefore be considered a successful example of positive action and special measures of the Indigenous people (Ministry of Education and Culture, 2021).
Supplementary Sami education outside the Sami homeland has been available since the 1990s. It is regulated by a decree of the Ministry of Education of 2009 âon the criteria for state support for supplementary education of foreign-language, Sami-speaking and Romani-speaking pupils in basic education and upper secondary educationâ (1777/2009). According to the municipalities, the state subsidy does not correspond to the actual costs of teaching, nor makes it possible to create full time and permanent teaching positions (Ministry of Education and Culture, 2021).
Currently, only 10 percent of the 2000 Sami children who live outside the Sami homeland receive extra-curricular Sami language teaching (Helander et al., 2023). It is offered to pre-school, primary school, and secondary school students for up to two hours weekly, if at least two students are enrolled. Studentsâ language proficiency and skills, as well as their age, may vary within the group. In the end of the school year, students receive a separate diploma for participating supplementary Sami education. This may affect both the attitudes of students and schools, as studying the Sami might not be seen as important as studying other subjects that get a numerical grade for the official diploma. It is also challenging to find Sami language teachers in Finland, with only a few teaching hours. Therefore, supplementary teaching has been available, mainly in the larger cities.
To tackle this problem, it is necessary to develop distance education for students who live outside the Sami homeland. The ongoing project Pilot Project on Distance Education in the Sami languages offers supplementary Sami teaching. The number of students in the project has increased dramatically in recent years. During the school year 2021â2022, there were about 100
2.3.2 Sami Language Teacher Training in Finland
Currently, the Giellagas Institute of the University of Oulu has the national responsibility for training teachers in the Sami language and literature subject. The universities of Oulu and Lapland have quotas for Sami-speaking preservice teacher applicants in the selection of students. There is a shortage of qualified Sami language subject teachers and special education teachers in primary and secondary education (Ministry of Education and Culture, 2021).
In recent years, the University of Lapland has organised studies in Sami pedagogy and Sami language teaching and learning for pre- and in-service teachers. The Ketterä korkeakoulu project of the University of Oulu, launched in 2019, provides additional courses to train qualified teachers in Sami quickly. The course targets applicants who are either proficient in the Sami language and willing to study to be a teacher, or qualified teachers who want to study Sami. The courses are organised in the Sami area, although some studies are conducted as distance studies (Ketterä Korkeakoulu, 2021).
2.4 Russia
According to the Population Census of 2010, 1550 Sami people live in Russia, and more than 80 percent (1370) of them live in the Murmansk Oblast (Federal State Statistics Service, 2010).4 Traditionally, Kildin, Skolt, Ter, and Akkala Sami languages were spoken in the territory of the Russian Sápmi, including the Murmansk Oblast. The Kildin Sami language is the widest spoken Sami language in the Kola Peninsula (Blokland & RieÃLer, 2011).
Sami children in Russia have the right to learn their Indigenous language at school (Zmyvalova, 2015). Russia signed and ratified most of the international legal acts regulating this right. These acts are the UNESCO Convention Against Discrimination in Education; the International Convention on the Elimination of All Forms of Racial Discrimination; the International Covenant on Economic, Social and Cultural Rights; the International Covenant on Civil, Political Rights;
2.4.1 Sami Language Teaching in the Lovozero School
The only school in Russia where children can learn the Sami language is in the Lovozero village.5 The only Sami language which is taught is Kildin Sami. The Sami language school subject has gone through some changes in the past decade. The Sami language subject has been renamed more than three times, and at times it was excluded from the school programme or was taught as part of an extra curriculum activity. Currently, this school subject is an extra curriculum or non-obligatory school activity. Therefore, teachers of the Sami language at school have free choice in deciding upon a name for the subject, as well as the content thereof. Currently, the subject is called âÐÐ½Ð½Ñ ÐºÐ¸Ð»Ð»/Mother tongueâ.6
According to the timetable, each Sami language class takes place once a week, for 45 minutes. Sami classes take place on Fridays after school. Children of Sami origin as well as of non-Sami origin are admitted to the course. The extra curriculum school activity is taught to the pupils of the first to fifth grades. During the field trip in 2019 to the Lovozero school, the observation of the classes demonstrated that the teacher attempted tuition in the Sami language. In cases where the children experienced difficulties in understanding, the teacher changed to the Russian language.
2.4.2 Sami Language in Higher Educational Institutions
At present, there is no single legislative act in the RF regulating indigenous language teaching in higher educational institutions. The federal subunits were given legislative and executive power on this issue. Some of them have created a strong legislative basis for Indigenous languages teaching. In the academic
The Institute of the Peoples of the North of the Herzen University in Saint Petersburg offers pedagogical education at the bacherâs level, which includes mandatory courses in Indigenous languages. The Institute offers three specialisations of pedagogical education at the bachelor level: culturology; education in the field of native language and literature; and pedagogical education (ÐапÑавленноÑÑÑ (пÑоÑилÑ): ÐÑлÑÑÑÑологиÑеÑкое обÑазование [Profile: Culturological Degree]; ÐапÑавленноÑÑÑ (пÑоÑилÑ): ÐбÑазование в облаÑÑи Ñодного ÑзÑка и лиÑеÑаÑÑÑÑ [Profile: Education within the Field of Language and Literature]). The language of tuition in all three specialisations is Russian.
3 Sami Language Teaching across the State Borders â Overarching Reflections
The fact that the Sami live in four different countries, and the Sami language has a different status in these countries, has a significant impact on Sami language teaching. Yet there are some similar tendencies.
We have found that Norway, Sweden, Finland, and Russia provide Sami teaching to some extent, although the possibilities for students to study vary. In Sweden to date, primary and secondary education is not provided solely in Sami. While children can attend a Sami school and receive teaching mainly in Sami, integrated Sami teaching provides only a few school subjects in Sami and core subjects in Swedish. In the Murmansk Oblast area in Russia, only one school provides Sami language teaching. In Norway, children can receive teaching in North, South, and Lule Sami throughout their compulsory education. This is also true for Finland, where the Basic Education Act guarantees the right of Sami-speaking children to receive most of the education in the Sami language in the Sami homeland. However, more Sami people are moving outside the Sápmi area, and most of the Sami children nowadays live outside Sápmi, where the Sami language teaching is less certain.
Due to the shortage of Sami teachers across Sápmi, and the increasing number of students living outside Sápmi, remote teaching seems to be an effective way to provide Sami language learning. For the smaller Sami languages, such as Inari, South, or Skolt Sami, remote teaching is beneficial. Besides Russia, all the other countries provide remote education in primary and secondary
In Norway, Nord University and UiT provide various Sami language courses within teacher training programmes, and the Sámi University of Applied Sciences provides North Sami teacher education both for Early Childhood Education as well as Primary and Secondary Education, solely taught in North Sami. Since 2016, the UmeÃ¥ University has been responsible for providing teacher training, but due to a lack of qualified teachers, only courses targeting in-service Sami language teachers have been provided in Sami. In Russia, the Institute of the Peoples of the North of the Herzen University offers pedagogical education at the bachelorâs level. Within this education, Sami language courses are provided. Furthermore, the Murmansk Arctic State University offers a masterâs program in linguistics called âTechnologies of the Sami Language Teachingâ. In Finland, no university has been assigned a teacher-training programme in Sami, however, several universities provide Sami language courses for teachers.
Additionally, several initiatives have been launched to provide a fast-track education for either Sami speakers who wish to pursue teacher education, or in-service teachers who are interested in teaching in Sami. Despite these various courses targeting Sami language teachers, the South Sami teacher education programme shows that the limited access to literature in South Sami, as well as Sami values, views, and knowledge in teaching being ignored, hinder teachersâ education throughout compulsory education. Thus, there is a risk of the marginalisation of the Sami language and Sami values throughout all levels of education in Sápmi. The Sami people and their languages have legal recondition in the four countries. However, the above-mentioned challenges demonstrate a gap between legal provisions and their implementation.
4 Conclusion
There is an observed increased interest in Sami languages and their revitalisation. We register positive policy and legal trends as well as an increased number of projects targeting Sami language learning across the four countries. These initiatives and policies are important steps to improve the Samiâs education. Still, there are some gaps that need to be filled. For example, in primary and
If we ignore the childrenâs need for comprehensive language education in the educational systems, we will lose another generation of speakers. It is therefore important that the four countries work together with endangered language pedagogy on practical solutions. However, the current position of Russia in international society makes it challenging for the Russian Sami to cooperate with Sami of other countries (Zmyvalova, 2022).
Acknowledgements
Ekaterina Zmyvalova extends her gratitude to Roman Gaidamashko, Elisabeth Scheller, and Hanna Outakoski.
Notes
The total number of Indigenous small-numbered peoples in Russia is calculated based on the Censusâs data, where Indigenous small-numbered peoples indicate their identity which they themselves consider relevant. At present, there lacks a federal registry of persons belonging to Indigenous small-numbered peoples in the Russian Federation (RF). This registry will be established and starts working on February 7, 2022, in accordance with the legislatorâs plan.
It is worth mentioning that other places provide Sami language teaching in the Murmansk Oblast. The Northern National College is among these institutions. (Pupils receive secondary professional education after the 9th or 11th grade). Among the means of learning Sami language is the services of the private teacher. Besides this, one of the kindergartens provide Sami language teaching to children of preschool age. The National-Cultural Centre provides such services as well.
ÐоÑÑниÑелÑÐ½Ð°Ñ Ð·Ð°Ð¿Ð¸Ñка. РабоÑÐ°Ñ Ð¿ÑогÑамма âÐÐ½Ð½Ñ ÐºÐ¸Ð»Ð» / Родной ÑзÑкâ [Explanatory note. Working Program âÐÐ½Ð½Ñ ÐºÐ¸Ð»Ð» / Mother tongueâ], accessible at Lsoshlovozero.ucoz.ru, https://disk.yandex.ru/d/I_yBSdxbFm80ww (accessed March 30, 2022).
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